HomeMy WebLinkAboutPSD-084-06
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REPORT
PLANNING SERVICES
PUBLIC MEETING
Meeting:
GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date:
Monday, June 19, 2006
Report #: PSD-084-06
File #: PLN 2.5.3
By-law #:
(;"'Pflg.,QQ-0 b
Subject: DURHAM REGIONAL OFFICIAL PLAN REVIEW -
SUPPLEMENTARY AMENDMENT (PART 2)
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report PSD-084-06 be received;
2. THAT the Municipality of Clarington support the deferral of the growth management
amendments (Population, Employment and Urban Land) to the Durham Regional Official
Plan until such time as the Region has undertaken the appropriate studies to implement
the Province's Growth Plan for the Greater Golden Horseshoe;
3. THAT in the event that the Region continues to proceed with the Supplementary
Amendment, that the comments contained in Sections 8 and 9 be the Municipality's
position of urban growth boundaries and growth management policy changes;
4. THAT a copy of PSD-084-06 and Council's decision be forwarded to the Region of
Durham; and
5. That Council's decision be forwarded to the interested parties listed in this report and
any delegatio
S"bmitred byo Reviowed byo _ ~_".@. -
D i J Crome, M.C.I.P., R.P.P. ( ~,
Director of Planning Services Chief Administrative Officer
BH*CP*DJC*sn
June 13, 2006
CORPORATION OF THE MUNICIPALITY OF ClARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L 1C 3A6 T (905)623-3379 F (905)623-0830
REPORT NO.: PSD-084-06
PAGE 2
1.0 PURPOSE
1.1 The purpose of this report is to:
. Summarize and present the proposed amendments to the Durham Regional Official
Plan (ROP), incorporating amendments related to the Population, Employment and
Urban Land component of the ROP review; and
. Provide the Municipality of Clarington's comments on the amendments to the
consolidated Durham Regional Official Plan.
2.0 PUBLIC MEETING NOTICE
2.1 Council determined that a Public Meeting should be held on the proposed amendments
to the growth management policies of the Regional Official Plan. Notice was placed in
the Canadian Statesman and the Orono Weekly Times newspapers advertising the
public meeting on June 19th for the proposed amendments to the Durham Regional
Official Plan. The notice was advertised for 2 weeks.
3.0 BACKGROUND
3.1 The review of the Durham Regional Official Plan started in May 2000 with the release of
a background paper. The Review has focused on five key areas:
Population, Employment and Urban Land;
· Commercial Policy Review
· Protection of Our Rural Resources
· Towards a Sustainable and Healthy Environment; and
· Transportation
The general approach was to prepare discussion papers, identify issues and directions,
prepare recommended directions that would form the basis of an amendment and
finally to prepare draft amendments. Public comment was sought at each stage.
3.2 The preparation of the amendments has followed two separate tracks. The Region
released a proposed amendment to the Regional Official Plan that addressed the
Transportation, Commercial, Rural and Environmental components. The Municipality of
Clarington provided comments on this proposed amendment (Part 1) on April 1 0, 2006
(Report PSD-040-06).
3.3 The release of the Greenbelt Plan and the proposed Growth Plan for the Greater
Golden Horseshoe (Growth Plan) provided significant new directions for growth
management in the Greater Toronto Area. The work on population, employment and
urban land was delayed to consider the implications of these new initiatives.
REPORT NO.: PSD-084-06
PAGE 3
The Region expressed key concerns with the proposed Growth Plan including:
The 40% intensification target
· The density targets of 200 residents and job per hectare for the Urban Growth
Centres of Oshawa and Pickering.
· The target of 1 job for every 3 residents rather than 1 job for every 2 residents.
3.4 At the December 6, 2005 meeting of the Durham Planning Committee, considering that
the Proposed Growth Plan "represented a significant intrusion into the Region's growth
management responsibilities", regional staff was directed to proceed with the
population, employment and urban land phase of the Review. It was felt that it was
important for the Region to move forward on its growth management vision.
3.5 On January 10, 2006, Durham Regional Planning Committee received the Durham
Regional Official Plan Review: Recommended Directions Report for Population,
Employment and Urban Land. The Report included responses to each of the
submissions received on the Population, Employment and Urban Land Discussion
paper.
3.6 The Planning Committee subsequently held a series of special meetings through the
month of February (including one in Clarington) to receive comments on the report.
3.7 Clarington responded to the above-referenced Recommended Directions Report on
April 25, 2006 (PSD-049-06). Council supported the concept of the need for an
expansion to the urban boundaries based on the Regional Population forecasts.
4.0 CONTEXT
4.1 In considering the proposed regional policies, it is necessary to consider Provincial
planning initiatives that have an impact on the future development of Clarington. Over
the past few years, the Provincial Government has and continues to pass new
legislation, plans and initiatives that affect the proposed amendments to the Regional
Official Plan. These include the:
. 2005 Provincial Policy Statement
. Oak Ridges Moraine Plan
. Greenbelt Plan
· Growth Plan for the Greater Golden Horseshoe
. Bill 51 - Planning and Conservation Land Statute Law Amendment Act
. Bill 43 - Clean Water Act,
. The proposed extension of Highway 407
4.2 The Provincial Policy Statement has clear policies for the preservation of employment
lands and natural resources; as well it directs municipalities to preserve prime
agricultural land. The Oak Ridges Moraine Conservation Plan and the Greenbelt Plan
have had the effect of restricting urban development from almost 81 % of the land area
REPORT NO.: PSD-084-06
PAGE 4
of Clarington. As a result, the existing urban areas of Courtice and Bowmanville cannot
extend northerly. However, to put it in context, the area outside of the Greenbelt is
approximately the size of the City of Oshawa.
4.3 Bill 51 makes numerous amendments to the Planning Act. Most of these would modify
aspects of the land use planning process, provide additional tools for implementation of
provincial policies and give further support to sustainable development, intensification
and brownfield redevelopment.
4.4 Bill 43, The Clean Water Act, is to protect existing and future sources of drinking water.
Municipalities are required to co-operate with source protection authorities, source
protection committees, other municipalities and ministries of the Government of Ontario
in addressing issues that affect the quality or quantity of any water that is or may be
used as a source of drinking water. If a source protection plan is in effect, activities
designated in the plan as activities that pose a risk to the quantity or quality of drinking
water, are prohibited.
4.5 The Province has declared its intention for taking a direct role in growth management
issues. The Places to Grow Act enables the government to plan for population growth,
economic expansion and the protection of the environment, agricultural lands and other
valuable resources in a co-coordinated and strategic way. The legislation is provincial in
scope and allows for growth plans in any part of Ontario
As part of this process, the Province released first the "Proposed" and subsequently a
"Draft" Growth Plan for the Greater Golden Horseshoe (Provincial Growth Plan). The
Provincial Growth Plan is based on a number of technical studies including population
and employment projections for the Greater Golden Horseshoe (GGH).
4.6 The Region's projections prepared for the Population Employment and Urban Land
report differs with the provincial forecasts for both population and employment. Should
the Provincial Growth Plan come into effect the Region will be compelled to bring
its Official Plan into conformity with the policies of the Plan, in accordance with
the Places to Grow Act. As a result the comments of the Municipality will have to be
reviewed accordingly.
5.0 PROVINCIAL COMMENTS ON DURHAM'S RECOMMENDED DIRECTIONS
5.1 In response the Durham's Recommended Directions Report for Population,
Employment and Urban Land released in January 2006 the Ministry of Municipal Affairs
and Housing, by letter dated April 12, 2006 (Attachment 7) states that the Region is
strongly encouraged to carry out the planning exercise in accordance with the policies
of the Provincial Growth Plan. The Ministry's position is summarized as:
. All municipal official plans must be brought into conformity with the Provincial
Growth Plan within 3 years of its final release.
. All decisions under the Planning Act must conform to the Provincial Growth Plan
that is in effect.
REPORT NO.: PSD-084-06
PAGE 5
. Municipal planning documents, particularly those of upper tiers, are to be structured
under the Provincial Growth Plan which will be the overarching provincial framework
for managing growth.
. The Region should be following the Provincial Growth Plan policies for population
and employment forecasts; 40% intensification target; density targets in the
Pickering and Oshawa Urban Growth Centres; and land needs assessment.
5.2 All indication is that the Province will soon put in force the Provincial Growth Plan.
Upon its release, the Province will be undertaking a variety of tasks to implement the
Plan, including the delineation of the built boundary for monitoring of intensification, an
assessment of the need for new urban land, in accordance with the parameters of the
Provincial Growth Plan and determining the scope and scale of the Urban Growth
Centres, including those in Pickering and Oshawa. There will also be sub-area
assessments at the regional scale looking at the local economy, transportation, water
and waste water capacity to serve growth and defining the natural heritage system.
5.3 It is staff's view that the regional interest would be better served by advancing
background work on the above issues as opposed to proceeding to try to implement an
amendment to the Durham Regional Official Plan on the growth management issues
contained in the Supplemental Amendment. As an alternative, Durham could be
preparing for the detailed analysis to be undertaken in accordance with parameters that
will be shared across the Greater Golden Horseshoe. It would also be important to start
talking "apples" to "apples" so that the understanding of density, built boundary and
other underlying measurements are in accordance with the approach being taken in the
Provincial Growth Plan.
5.4 It is noted that Halton Region recently commenced a $2.5 million growth management
study to implement the Provincial Growth Plan.
5.5 Staff would recommend that the growth management portion of the Regional Official
Plan be deferred until the Provincial Growth Plan is enacted. In the alternative of the
Region continuing to proceed with the Supplemental Amendment, the comments of the
following sections are provided.
6.0 PROPOSED AMENDMENT
6.1 The Supplemental Attachment, Part 2 of the Regional Plan Review Amendment,
proposes to:
. Revise the planning horizon of the Regional Official Plan from 2021 to 2031;
. Replace the population and employment targets with forecasts;
. Add policies to promote the development of complete communities that include a
balance of jobs and population;
. Add policies to emphasize Regional Council's determination to achieve the
employment target of 1 job for every 2 persons;
REPORT NO.: PSD-084-06
PAGE 6
. Add policies to clarify that the structural framework of the Plan forms the basis for
the long-germ growth and development of the Region beyond the timeframe of the
Regional Official Plan;
. Add policies to address growth management objectives including intensification,
housing mix and density;
. Add policies to express the Region's intent that employment growth be balanced,
with at least 50% of all forecast employment in designated Employment Areas;
. Add further direction for area municipal official plan conformity including:
o The achievement of targets, forecasts and growth management objectives;
o Consideration of local employment land needs; and
o Requirements for secondary plans to be developed to 75% of their dwelling unit
capacity prior to the approval of development in sequential secondary plan areas;
. Add further criteria to be considered through a comprehensive review for the future
expansion of Urban Area boundaries, including:
o The achievement of growth management objectives;
o Consideration of agricultural uses; and
o Full municipal servicing.
. Add criteria for the selection of areas for Urban Boundary expansion;
. Add policies to recognize downtown Oshawa and downtown Pickering as Urban
Growth Centres, to function as the dominant Centres within the Region;
. Add policies to introduce a minimum floorspace index of 2.5 for the Regional
Centres within Pickering, Ajax, Whitby, Oshawa and Bowmanville;
. Add policies to encourage area municipal zoning by-laws to include permissive
zoning within Regional Centres and along Regional Corridors as an incentive to
implement higher density, mixed-use development in these areas;
. Add criteria for conversion of employment lands to other urban designations, which
can only be considered through a comprehensive review;
. Add a policy to clarify that the above employment land conversion criteria does not
restrict the redesignation of brownfield sites where appropriate.
A complete copy of the Region's Report 2006-P-39 with the supplemental attachment to
the Proposed Amendment is available for review in the Planning Services Department.
REPORT NO.: PSD-084-06
PAGE 7
7.0 GROWTH FORECASTS
7.1 Population Forecast
The Region's population forecast anticipates Clarington's population growing to 177,800
by the year 2031. The Province's Growth Plan has forecasted Durham Region's
population growth to be 960,000 by 2031. This is 90,000 less than the Region's
forecast. Despite the view that the provincial forecasts do not adequately address
growth potential of Durham, if the Growth Plan comes into effect the provincial forecast
will be imposed on the Region.
Table 1 - Comparison of Forecasts
Population and Emplovment Forecasts for the Reaion of Durham
Provincial Durham Region Difference
Growth Plan OP Review
2031 Population 960,000 1,050,600 Approx.
90,000
2031 Employment 398,800 350,000 Approx
50,000
The Regional forecast estimates the population of Clarington to increase from the
current 80,000 to 177,800 by 2031. Clarington will represent 16.9% of the population in
Durham Region, an increase of 2.4% (Attachment 1).
POPULATION FORECASTS FOR CLARINGTON AND DURHAM
REGION,2006-2031
1,300,000
1,200,000
1,100,000
1,000,000
r;: 900,000
~ 800,000
-5 700,000
g- 600,000 ~-
c.. 500,000
400,000
300,000
200,000
100,000
o
o Share of Regional 13.85% 14.48% 15.57%
Population (%)
o Durham Population , 585,695 657,310 841,785
I
L__D CI~~ng~n pOPulati~ 81 ,135 95,205_~030
Source: Region of Durham - Recommended Directions Report (Jan. 2006)
16.92%
1,050,600
177,750
REPORT NO.: PSD-084-06
PAGE 8
7.2 Residential Land Needs
The capacity of designated urban land to accommodate the forecast residential growth
has been reassessed. Clarington has enough designated Urban Residential land
to accommodate the forecasted growth until 2026. However the results concluded
that, by 2031 Clarington will require an additional 345 hectares of residential land if
growth patterns and trends continue similar to those at present.
POPULATION FORECASTS/GROSS LAND INVENTORY ESTIMATES
FOR CLARINGTON, 2006-2031
200,000
180,000
160,000
140,000
g 120,000
~ 100,000
::s
g. 80,000
ll.
60,000
40,000
20,000
o
2006
2011
2021
2031
Year
c::J Clarington Population -+-Clarington Gross Land In\€ntory (ha)
Source: Region of Durham - Recommended Directions Report (Jan. 2006)
7.3 Employment Forecast
The Regional forecast has employment in Clarington projects as an increase to 43,500
jobs by 2031. This only accounts for a slight increase in Clarington's share of Regional
Employment; from 10.1 % to 10.9% (Attachment 1). There is no need for additional
employment area land in Clarington based on the employment forecast.
REPORT NO.: PSD-084-06
PAGE 9
r- n ____n
500,000
Employment Forecast for Clarington and Durham
Region 2006-2031
0 ii.
2011 2021 2031
o Durham Region 225,800 311,400 398,900
o Clarington 22,900 31,100 43,500
Share of Regional 10.1% 10.0% 10.9%
Employment
400,000
300,000
200,000
100,000
8.0 URBAN EXPANSION AREAS
8.1 Purpose of Urban Growth Boundaries
Urban Growth Boundaries is a planning tool that helps municipalities manage growth
based on fiscal resources and the need to protect natural resources and prime
agricultural land. In addition, determination of long term public investment can be made
by having defined urban boundaries; they allow for the logical planning and progression
of services (transportation and infrastructure). Defined boundaries help to maintain a
more compact form of urban development and allow for areas outside of the boundaries
to carryon long-term planning for renewal of specialty crop areas and other types of
investment by the farming community. Establishing long-term urban boundaries also
stabilizes land values as it does not allow for rampant speculation and it helps eliminate
competition between local municipalities when they are part of a regional plan.
The new urban expansion areas proposed in the Supplementary Amendment would
extend the current urban boundaries of Courtice and Bowmanville
8.2 Criteria of Expanding Urban Growth Boundaries
The current policies of the Regional Official Plan outline the criteria that are to be
considered when considering future urban area boundary expansions:
. The Regional Structure;
. Impact on the natural environment;
. Existing or committed infrastructure;
. Financial capability of the Region;
REPORT NO.: PSD-084-06
PAGE 10
. Population, employment and commercial targets;
. The agricultural capability of the area; and
. Other matters deemed necessary by Council.
It is not clear how these criteria were applied to the current proposal by the Region.
There is no detailed analysis provided and no discussion of alternative growth options.
For example, some growth management studies on a regional scale examine different
models or options for growth and apply a quantitative and qualitative analysis to
consider which growth option best achieves the Plan's objectives.
8.3 Regional Staff's Proposed Expansion Areas in Clarington
Based on the population on the Regional Population projections, the Region proposes
three urban area expansions within Clarington (Attachment 3).
i. The East Courtice expansion (Attachment 4) is located generally south of Black
Creek, is bordered to the east by Hancock Road and the existing urban boundary
to the west and south. Environmental features in the area include a 9.19 hectare
wood lot and Tooley Creek flows down the middle. The lands are relatively level
with primarily used for agriculture with soils types ranging from class 1 to 3.
II. The West Bowmanville expansion (Attachment 5) would follow the greenbelt
boundary to the north, Holt Road to the west and Highway 401 to the south. The
soils range from class 1 to 3 and the lands are relatively level with the exception
of a drumlin located at the south east corner of the proposed expansion area.
Two small creeks flow north to south and there is a small 5 hectare woodlot at
the east end of the site. Part of the Maple Grove hamlet is included in the
expansion; the remaining portion is predominantly agricultural.
III. The East Bowmanville expansion (Attachment 6) fills in the area south of the
401 between Bowmanville and the Wilmot Creek Adult Lifestyle Community.
This area is used for agriculture and consists of class 1 soils. The proposed area
would be used for residential purposes and is now in the ownership of Ridge
Pine Park Inc., the owners of the Wilmot Creek Community.
8.4 Preliminary Analysis of Expansion Areas
The total proposed Urban Growth Boundary Expansion area is 734 hectares; 522
designated as Residential Area and 212 as Employment Area. The non-developable
and developable portions are shown on Table 2 but would be subject to more detailed
analysis in the detailed planning stage.
REPORT NO.: PSD-084-06
PAGE 11
Table 2 - Urban Boundary Expansion Areas
Residential Area (ha) Employment Area (ha)
Non-Developable Developable Non-Developable Developable
Courtice 29.86 108.94 48.34 75.39
West Bowmanville 90.32 241.45 16.27 72.77
East Bowmanville 2.1 49.7 0 0
TOTAL 122.28 400.09 94.61 148.16
Regional staff advised that the gross land area has been increased from the net
residential land required shown in Section 6.2 in order to account for environmental
constraints, public lands and infrastructure and commercial requirements, including
large format retail areas.
Regional staff also advised that while there is no need for the additional employment
lands at this time, they were incorporated to provide continuity of the urban boundary
down to Highway 401.
8.5 Implications of Regional Greenbelt Submission
8.5.1 Regional Council recently authorized a submission to the Province the remove certain
lands from the Greenbelt and, in the case of Clarington, add certain lands to the
Greenbelt between Bowmanville and Courtice. In Clarington, lands on the north west
and north east corners of the Courtice Urban Area were not only requested to be
deleted from the Greenbelt but regional staff were instructed to have these lands
designated for future urban development.
8.5.2 Regional staff responded to a further request of Regional Planning Committee as to
how this may be accomplished. Staff Report 2006-P-51 noted that direction has been
given throughout the Region OP Review that the amendment was to implement the
Greenbelt Plan and therefore would be in conformity with the Greenbelt Act and Plan.
Regional staff reported that adopting an amendment that designated lands in the
Greenbelt as "future urban development" such as proposed in Ajax and Courtice, would
render the amendment (including all of the other unrelated policies addressing urban
development) to be of no effect and in violation of these Provincial instruments.
8.5.3 As a result of a review of this issue by the Region's Legal Department, it was
recommended that the Region's request "be appended to the Regional Official Plan as
an expression of Council's desire for certain amendments to the Greenbelt Plan."
Regional staff proposed that this Appendix include Regional Council's resolution
detailing the request and Council's intent to pursue theses changes.
REPORT NO.: PSD-084-06
PAGE 12
8.5.4 Unfortunately this approach creates uncertainty and undermines the land needs
analysis done to date. In light of the Region Council's position, should these lands be
assumed as urban expansion lands or Greenbelt lands? Given that Council has
passed the resolution for the former, it has some status towards urbanization. The
Region should therefore have reduced the lands required by the portion
identified for future urban lands in Regional Council's resolution.
8.5.5 The Municipality does not support the changes proposed to the Greenbelt boundary.
8.6 Staff Recommendations on Urban Area Expansions
8.6.1 In a previous report on the Phase II Discussion Papers on April 19, 2004 staff
recommended that based on the recommended population forecasts, additional lands in
the urban area are required. The Municipality has previously expressed the opinion
that the Regional Forecasts are aggressive in comparison with our own forecasts and
with the Province's forecast. If the Provincial Growth Plan comes into force within
the next three months as expected, the basis of the Region's land needs analysis
will change and there may be very little land required to meet Clarington's
provincially-defined growth needs.
8.6.2 In general, since the need for additional lands only occurs in the last 5 years of the plan
(between 2026 and 2031) based on the higher population forecasts, Planning staff
support more limited urban area expansions than proposed by the Region. In particular
the East Bowmanville and a more limited West Bowmanville expansion to Maple Grove
Road are supported as reviewed below. Staff would also support If more residential
land is required than these minor expansions, then Staff support the addition of the
Courtice lands over to Hancock Road. It would be preferable that the other expansions
await more detailed information and that there is a period of monitoring of growth trends
under the Provincial Growth Plan to determine how successful the Plans are at
achieving more compact, transit-oriented and complete communities.
8.6.3 Support for East Bowmanville expansion (Wilmot Creek Lifestyle Community)
The 52 ha additional lands located in the south-west quadrant of Bennett Road and
Highway 401 is an isolated pocket of land that will become less viable as an agricultural
parcel as the Bowmanville waterfront lands are urbanized. Approximately one half of it
is currently occupied by Wilmot Creek Lifestyle Community as their sales centre and
recreation area. The incorporation of these lands into the urban area is an appropriate.
8.6.4 Support for the West Bowmanville Residential Expansion Area Only to Maple
Grove Road
The proposed West Bowmanville Expansion Area should be amended to only include
lands from the current urban boundary to Maple Grove Road. This provides a rounding
out of the Bowmanville Urban Area to a boundary which helps to mitigate the potential
impacts on the agricultural operations at the urban/rural interface. The current
arrangement with rear-yards of residential dwellings abutting active farming operations
creates land use conflicts. From a neighbourhood design perspective, it provides for
REPORT NO.: PSD-084-06
PAGE 13
only a partial neighbourhood and doesn't allow for a westerly access to the residential
area.
A decision on the remaining portion should be deferred until subsequent Official Plan
Reviews. A decision would be pre-mature at this time as assumptions on growth
patterns will change and Provincial Policies continue to evolve. The total area of the
Amended West Bowmanville Expansion would be 117.91 hectares, 81.63 hectares
would be considered developable and 36.28 would not.
These proposed urban lands west of Maple Grove Road, in closer proximity to the
Darlington Nuclear Generating facility, would enhance the urban separator between
Bowmanville and Courtice. The urban separator should remain sufficiently large to
allow an agricultural uses to remain for the planning period.
8.6.5 Support for East Courtice Residential and Industrial land Expansion
The Region proposes to expand the urban area of Courtice easterly to Hancock Road.
The proposed new urban area contains both living and employment lands. The benefits
of this expansion include the sequential development of industrial and residential lands
that could easily be serviced. In addition, this area lies east of the proposed trunk sewer
connecting the South Courtice WPCP to northern commercial and residential
developments in North Oshawa. The proposed employment lands is also seen as a
"natural" expansion of the industrial developments in this area of Courtice; in a separate
report, staff is recommending for approval of a waste-composting facility in the
proposed expansion area. However, further development of this area should only
proceed once a subwatershed management plan is prepared for Tooley Creek that
would incorporate the preservation of the natural heritage features and baseflow for the
creek.
It should not be necessary to revisit these designations when the alignment for the
Durham East Freeway is determined as the most westerly alignment is east of Hancock
Road. Clarington future industrial lands beyond the current planning period would
largely be located along this corridor.
8.6.6 Do not support the West Bowmanville Industrial Land Expansion.
This area of Bowmanville is the focused of rapid residential development and recently
the municipality has been investing in the development of major recreational facilities.
West of this municipal park, a creek flows through the middle of these lands thus
reducing its viability for industrial development. This isolated pocket of land should not
be designated for urban uses at this time given the lack of need for additional industrial
lands. It should be reserved for future consideration in subsequent Official Plan review
when there is certainty about the location of the Durham East Freeway, among other
things. .
REPORT NO.: PSD-084-06
PAGE 14
8.6.7 Clarington needs more Serviced industrial land rather than additional designated
industrial lands
The different background reports prepared for the Regional Official Plan have
concluded that Clarington has an adequate amount of designated land for employment.
However, what the municipality lacks is serviced land.
The Municipality is in the process of developing aggressive plans for two major
employment areas: the Energy Business Park and the Science and Technology Park.
They will help meet our employment targets only if infrastructure services become
available in the near future.
Large parcels of land without services but designated for employment uses attract low
quality industrial uses that usually require large amounts of outdoor storage. Since
much of the employment lands in Clarington are located along Highway 401, this
industrial uses would tend to detract from the community's image and Council's
development efforts to implement the plans for the Energy and Science/Technology
Business Parks.
8.7 East Bowmanville Expansion and Council's resolution on AYT
8.7.1 As part of consideration of Staff Report PSD-027-06 on the Clarington Commercial
Policy Review, on March 1, 2006 Council adopted a resolution that directed staff to
make submission to incorporate a 57 acre parcel owned by A YT Corporation on the
north-east corner of Highway 401/Bennett Road interchange be included for an Urban
Boundary Expansion and designated appropriately to permit large format retail over the
longer term. Council's resolution also provided for the redesignation of the other AYT
parcel on the west side of Bennett Road for Prestige Employment and for the retention
of the Bennett Road interchange.
8.7.2 By separate report, staff is advising Council on the progress of discussions with A YT.
The Council-proposed land uses are not acceptable to A YT. It is respectfully requested
that Council should provide direction on this issue.
9.0 OTHER COMMENTS ON GROWTH MANAGEMENT POLICIES
9.1 Intensification
9.1.1 Staff support the recommendation that intensification account for 20% of all new
residential development. This is appropriate in Clarington. However, the intensification
target could be higher in the areas with Urban Growth Centres (Downtown Oshawa and
Downtown Pickering) identified in the Provincial Growth Plan. The Region should not
use a "one size fits all" approach to lakeshore urban areas but should recognize their
differing characteristics, including their role in the Regional structure, the brownfield
areas available, the age of development, etc when setting intensification targets.
9.1.2 Intensification will be measured differently in the Provincial Growth Plan and the
Regional Official Plan. The built boundary proposed in the Proposed Amendment is
REPORT NO.: PSD-084-06
PAGE 15
based on a line established in the 1991 Regional Official Plan Review. The Province's
built boundary line is to be established on the basis of more recent development limits,
likely 2005. The latter should be used for measuring intensification. Under the Region's
line, any of the higher density development occurring in the area of the West
Bowmanville Main Central or the Courtice Main Central Area would not count towards
intensification.
9.2 Greenfield Densities
Staff agree that greenfield areas should be developed at a minimum density of 17 units
but would favour using 12 units per hectare for Newcastle Village Urban Area.
9.3 Phasing Policies
It is important to have strong phasing policies for new development in order to efficiently
use infrastructure. Clarington's urban areas have more of a challenge than many
others urban areas with the possibility of growing in several directions at once.
Municipalities will be required to prepare secondary plans which contain phasing
policies. These secondary plans will provide implementation strategies to provide
adequate land, infrastructure and public facilities and encourage maximum utilization of
existing infrastructure as well as protecting the natural environment.
The policy that requires secondary plans to be developed to 75% of their capacity prior
to the approval of development in another area is not an effective method implement
phasing in Clarington. The Region's plan should establish a general approach that one
neighbourhood planning area should be largely completed before another starts.
However, it is likely more effective to have each area municipality submit a growth
management plan that addresses the sequential phasing of residential areas.
9.4 Bowmanville Regional Centre Development Density
Each urban area has unique circumstances. The use of an minimum overall floor
space index (FSI) of 2.5 in Bowmanville may be appropriate in the West Bowmanville
Central Area but would destroy the historical character of portions of Downtown
Bowmanville. In order to understand the implications of this target, the existing overall
FSI should be provided for each Regional Centre.
Moreover, there are concerns as to how the "minimum overall" floorspace index would
be applied. Each project coming in may make the case for lower densities and the
"average" is never enforced. This is particularly true for new commercial developments
where the densities tend to be approximately 0.25 FSI. Moreover, in order for this to be
an average, in consideration of existing building stock, it would be necessary for all new
infill projects to exceed the "minimum overall" FSI. Lastly, there should be an
understanding of how the proposed "minimum overall" floor space index compares to
the Province's approach of "residents and jobs per hectare"
While we applaud the Region's efforts to require higher densities within regional
centres, the only way to achieve higher density is through a less car dependent built
form with a successful higher order transit system. There is no commitment in the
Regional Plan to extend such a system to Clarington in the time period of the Plan.
REPORT NO.: PSD-084-06
PAGE 16
Can Bowmanville even expect the level of transit service currently available in Oshawa?
Perhaps the Region should consider an appropriately-designed minimum density that at
least establishes a base.
If the Region continues to use the "minimum overall" as a basis of measurement, it
should be much lower for Bowmanville Regional Centre for the following reasons:
· Bowmanville is not an Urban Growth Centre under the Provincial Growth Plan
· There is no commitment by the Region or GO for higher order transit to serve the
Centre
· There is heritage building stock in the downtown that should be preserved.
9.5 Monitoring of Growth Management Targets
The current Regional Plan has a number of growth management targets and the
proposed Amendment would add additional targets. These targets are only of value if
they are monitored and enforced, where appropriate. The Region should include
appropriate policies about how these policies will be monitored and implemented.
9.6 Regional Corridors
The "Regional Corridor" designation along Highway 2 should be extended to include the
area within the proposed Urban Boundary Expansions of Courtice and West
Bowmanville. Regional corridors should have more detailed policies addressing built-
form and development densities
9.7 Durham East Freeway
The "Freeway Connection" between Courtice and Bowmanville has been removed from
Schedule 'A'; current Highway 407 East extension E.A. has to date confirmed the need
for the East Durham Freeway, this should be replaced with a "Proposed 401/407 Link".
10.0 NEXT STEPS
10.1 The next steps in the Region's schedule for the Durham Official Plan Review are:
. June 27, 2006 -
Statutory Public Meeting on Population, Employment and
Urban Land Proposed Amendment
End of Consultation Period
Release of Decision Report on Recommended Amendment
Planning Committee Decision
Regional Council Decision
. July 7, 2006 -
. August 8,2006-
. August 29,2006-
. September 13, 2006 -
REPORT NO.: PSD-084-06
PAGE 17
11.0 CONCLUSION
11.1 The release of an approved Growth Plan for the Greater Golden Horseshoe, which is
considered imminent, will have a significant impact on the growth management
component of the Durham Regional Official Plan. It would be preferable to work on
shaping this Plan to best meet Durham's needs rather than expend the effort on the
current exercise.
11.2 In the alternative of the Region staying the course, comments are provided. Staff's
proposal, while more limited, still provides lands for up to an additional 11 ,000 people:
6,000 in Bowmanville and 5,000 in Courtice. Assuming the planned population for the
existing urban boundaries in the Regional Official Plan remains on target, Bowmanville
would have approximately 91,000 people by the year 2031 and Courtice would have a
population of approximately 50,000 by the same time. Newcastle is currently planned
for 17,500 persons but increased greenfield densities and intensification would increase
this population.
11.3 The lack of detailed analysis on various urban growth alternatives and their implications
remains a concern.
Attachments:
Attachment 1 - Population and Employment Forecast
Attachment 2 - Gross Land Inventory - Region's Land Need Analysis
Attachment 3 - Proposed Expansions to Clarington Urban Growth Boundaries
Attachment 4 - Proposed Courtice Urban Growth Boundary Expansion
Attachment 5 - Proposed West Bowmanville Urban Growth Boundary Expansion
Attachment 6 - Proposed East Bowmanville Urban Growth Boundary Expansion
Attachment 7 - Ministry of Municipal Affairs and Housing letter dated April 12, 2006
List of Interested parties to be advised of Council's decision:
Linda Gasser
Libby Racansky
Adam Brown
Bryce Jordan
Tony Biglieri
Peter Walker
Walter Kranzl
Richard Ward
David Rice
Aleksandr Bolentenko
Michael Montgomery
Jason Swartz
Municipality Year
____~____._m_ ----
2011 2021 2031
Ajax
Population: Urban 100,900 I 127,300 133,900
Rural 1,200 1,300 1,300
Total I 102,100 128,600 135,200
I
Employment: I 32,300 42,800 49,400
Brock
Population: Urban 7,300 8,900 11,000
Rural 6,400 6,700 7,200
Total 13,700 15,600 18,200
Employment: 4,400 5,600 6,500
Clarington
Population: Urban 79,200 114,400 160,300
Rural 16,000 16,600 17,400
Total 95,200 131,000 177,700
Emplovment: 22,900 31,100 43,500
Oshawa
Population: Urban 160,000 192,300 235,500
Rural 1,700 1,700 1,800
Total 161,700 194,000 237,300
Employment: 70,300 84,200 103,300
Pickering
Population: Urban 100,800 145,000 201,100
Rural 4,300 4,500 4,800
Total 105,100 149,500 205,900
Employment: 38,200 67,600 93,400
Sucgog
Population: Urban 9,900 11,500 11,500
Rural 13,400 14,100 14,600
Total 23,300 25,600 26,100
Emplovment: 7,600 8,500 10,200
Uxbridge
Population: Urban 12,100 12,500 12,500
Rural 10,300 10,900 11,500
Total 22,400 23,400 24,000
Employment: 6,500 7,800 10,100
Whitby
Population: Urban 131,600 171,600 223,600
Rural 2,500 2,600 2,600
Total 134,100 174,200 226,200
Employment: ; 43,600 63,800 82,500
Durham I
Population: Urban I I 783,400 989,300
601,700 I
Rural 55,600 58,400 61,300
_I- -: . I 1-:r.;illll:I1H'-;.U..".; I ..
Employment: 225,800 311,400 I 398,900
I
Note: Numbers are rounded to the nearest 100.
Totals may not add precisely due to rounding.
Attachment 1 to
Report PSD-084-06
MUnicipality
Housing
Type I
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Attachment 2 to
Report PSD-084-06
TABLE 2
GROSS LAND INVENTORY (HectJres)
1
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To Report PSD-084-06
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699130
Attachment 5
To Report PSD-084-06
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699131
Attachment 6
To Report PSD-084-06
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699132
Ministry of
Municipal Affairs
and Housing
MUnloipal ServiC&$ OffiCe
Central Ontario
777 Bay Street, ~ Floor
Toronto ON MSG 2E5
Phone: 416-585-6226
Fax: 416.585.(l88~
Toll-Free: '-800-668-{)230
Ministere des
Affaires municipales
et du Logement
Bureau des services aux municipaJites
Centre de l'Ontario
777. rue Bay, 2rG etage
Toronto ON Iv1SC3 2ES
Teh~phone: 416.565-6226
T9Iecopleur: 416-585-6882
Sans frais: 1-800-668-023Q
Attachment 7 to
~11 Report PSD-084-06
@Juntano
April 12, 2006
A. L. Georgieff, MCIP, RPP
Commissioner of Planning
Regional Municipality of Durham
Planning Department
605 Rossland Road E., 4th Floor
P.O. Box 623
Whitby ON L 1 N 6A3
Dear Mr. Georgieff,
Re: Durham Region Official Plan Review - Recommended Directions
for Population, Employment and Urban Land (January 2006)
Durham Region File No.: 012-01
MMAH File No.: 18.DP.2003
Thank your for providing us with a copy of the Recommended Directions Report
released on January 10, 2006 which recommends directions for the Population,
Employment and Urban Land component of the Durham Region Official Plan
(DROP) Review. It is our understanding that this report will be presented to Planning
Committee on April 25, 2006 for consideration and to request the release of a
proposed amendment to the DROP.
The following are the Ministry of Municipal Affairs and Housing's (MMAH) preliminary
comments. More detailed comments will follow once the proposed amendment is
released for public/agency consultation and review. The review is based on a review
of the Planning Act and Provincial Policy Statement, 2005 (PPS), Proposed Growth
Plan for the Greater Golden Horseshoe issued November 2005, the Region's
Recommended Directions Report and a "One-Window" circulation with the Ministry of
Public Infrastructure Renewal (PIR).
Implementation of the Proposed Growth Plan
The Proposed Growth Plan is still subject to finalization. However, following the
release of the final Growth Plan, municipal implementation of the Plan will, among
other things, include conformity with the policies in the Plan in accordance with the
Places to Grow Act, 2005. The Places to Grow Act, 2005, requires that all decisions
under the Planning Act conform to a growth plan that is in effect. This Act also
131
nl" 4. ~
requires that within three (3) years of a growth plan being approved all municipal
official plans must be brought into conformity with the Growth Plan.
In addition. PIR will undertake mapping and data gathering necessary to measure
density and intensification targets. in consultation with municipalities. This work will
focus on the following key matters:
. Identification of the "built boundary";
. Identification of the scope and scale of Urban Growth Centres; and
. Determination of need for new urban lands.
If the Growth Plan is approved, all decisions including the adoption and/or approval
of the DROP, would have to conform to the policies of the Growth Plan. Therefore,
the Region is strongly encouraged to carry out this planning exercise in accordance
with the policies of the Proposed Growth Plan.
Growth Forecasts (Population, Household and Employment)
Durham Recommended Directions:
. Region's population will grow to 1,050,600 by 2031.
. Region's employment forecast is 398,800 jobs by 2031
Proposed Growth Plan:
. Forecasts a population of 960,000 by 2031 (about 90,000 less than the
Region's recommended forecast).
. Forecasts Durham's employment to reach 350,000 jobs by 2031
(approximately 50,000 less than the Region's recommended forecast).
The Proposed Growth Plan is to be the overarching provincial framework for
managing growth to 2031 in the Greater Golden Horseshoe (GGH) under which
municipal planning documents, and particularly those of upper tiers. are to be
structured. To this end, Policy 2.2.1.1 states population, household and employment
forecasts for all upper and single-tier municipalities contained in Schedule 3 will be
used as the basis for planning and managing growth in the GGH. As noted in the
preface to the Directions Report, "the Region is at odds with the Provincial forecasts
for both population and employment. This has implications on the assessment of the
Region's urban land needs."
The Recommended Directions Report highlights that the population and employment
forecasts the Region is proposing to rely on to 2031 is about 90,00 people and
50,000 jobs more than the forecasts within the Proposed Growth Plan. Accordingly,
these are the forecasts, which the Region should be utilizing in its DROP Review.
2
i "j' f)
. ...
Intensification and Built-Up Area
Durham Recommended Directions:
· Add a new policy that the consideration of boundary expansions for Living
Area uses will be contingent upon the realization of the 20% intensification
target in the existing designated urban areas or a demonstration that the
municipality is moving significantly toward the target.
· Designate a built urban boundary in accordance with the established 1991
built urban area boundary.
· Add a new policy which requires local official plans to include phasing policies
to recognize the intensification and redevelopment objectives of the ROP
through secondary plans.
Proposed Growth Plan:
· Requires that by the year 2015, and for each year thereafter, a minimum of
40% of all residential development occurring annually within each upper- and
single -tier municipality will be within the built-up area;
· PIR will verify and delineate the built boundary in consultation with upper- and
single-tier municipalities.
One of the key assumptions of the Region's analysis is that intensification will
represent 20% of all new residential development. Residential intensification is an
important component of both the Proposed Growth Plan and the PPS - with the
Proposed Growth Plan identifying the 40% target by 2015. PIR is planning to verify
and delineate the built boundary in consultation with upper and single-tier
municipalities (Policy 2.2.3.5). All upper and single-tier municipalities, in consultation
with lower-tier municipalities, are to develop and implement official plan policies and
outline a strategy to phase-in and achieve the intensification target (Policy 2.2.3.6).
In addition, municipalities are to identify intensification areas that will be planned to
meet particular criteria, such as transit-supportiveness (Policy 2.2.3.7).
If the Growth Plan is approved as proposed, the Region would have to be able to
illustrate how it will meet the 40 % target by 2015, and all following years. When
developing policy and assessing its land needs, the Region should be using this
target rather than the target of 20% as proposed. While the Proposed Growth Plan
does provide municipalities with flexibility in determining how intensification is
accommodated and distributed across the region, it does not provide upper-tier
municipalities in the inner ring with the ability to alter the requirements of a growth
plan or set a lower target.
Density
r
Durham Recommended Direction:
· Require that designated greenfield areas develop at a minimum density of 17
units per hectare (7 units/acre) for the lakeshore urban areas and 12 units per
hectare (5 units/acre) for other urban areas.
3
193
IPR 12 2006 9:31 AM FR MSO CENTRAL
416 585 6882 TO 9190566662~~
t-'.tJ:::J
. Add a policy requiring that at least 30% of all new residential units produced
be of a type other than single-detached.
Proposed Growth Plan:
. Designated Greenfield area of each upper and single':tier municipality is to
achieve a minimum density of 50 residents and jobs per hectare. This density
target is to be measured over the entire greenfield area.
. 'Urban Growth Centres are to achieve a density target of 200 residents and
jobs combined per hectare.
The provision of a full range of housing types to meet regional market needs (by
type, tenure and affordability) is a key element of the Proposed Growth Plan and the
PPS. The use of minimum densities to support a mix of housing while also
supporting transit supportive urban form and a more compact and cost-efficient
urban structure is one of the methods the Proposed Growth Plan directs
municipalities to use. .
Policy 2.2.4.5 of the Proposed Growth Plan states that Urban Growth Centres
(UGC's) will be planned to achieve a minimum gross density target by 2031 or
earlier. The density target for downtown Pickering and downtown Oshawa in
Durham Region is a minimum gross density of 200 residents and jobs combined per
hectare each. Therefore, a recommended direction should be incorporated to
achieve this density target for the UGC's. If the Growth Plan is approved, PIR will be
working with municipalities to identify the scale and scope of each UGC (Policy
2.2.4.2). Municipalities will be responsible for delineating the actual boundaries
(Policy 2.2.4.4).
In addition, the designated Greenfield area of each upper-tier and single-tier
municipality is to be planned to achieve a minimum density target that is not less
than 50 residents and jobs per hectare, excluding provincially significant features and
areas where development is not permitted in accordance with provincial plans and
policies (Policy 2.2.7.1). For both the UGC's and designated Greenfield areas, the
Region needs to demonstrate how these density targets would be achieved.
The Recommended Directions Report suggests that a gross target of 17 or 12 units
per hectare (Iakeshore and other urban areas respectively) should be adopted in the
DROP Review. However, because a clear methodology (including assumptions) has
not been provided in the report for calculating these targets, it is not possible to
determine if they implement the Proposed Growth Plan target. In addition, it is alsc.
not clear whether either density target can be achieved when the proposed housing
mix in the Recommended Directions Report is for 70% single detached units.
Lastly, there is no mention of minimum targets for the provision of housing which is
affordable to low and moderate income households in accordance with PPS Policy
1.4.3 a).
4
J.94
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Urban land Needs (Living Areas and EmgloY!11ent Areas}
The Region's assessment of required Living Area and Employment Area land to
accommodate growth is based on targets, forecasts and density assumptions
contained in the Directions Report which are notably different that those contained in
the Proposed Growth Plan. As a result, the conclusion in the Recommended
Directions Report that there is a shortage of 2,890 hectares of Living Area and 380
hectares of Employment Area should be revisited in the context of a land budget
which applies the policies of the Proposed Growth Plan.
Maior Infrastructure and Financial StrateQV
The evaluation of infrastructure needs should be an essential component of the
population, employment and urban land component of the ROP Review. The City's
Recommended Directions Report notes that the 40% intensification rate and higher
density targets would be difficult to achieve without adequate infrastructure,
particularly significant investment in water, sewer and transportation infrastructure.
Conversely. the infrastructure and public service facilities needed to support
greenfield development also requires significant investment. As such I preparation of
a master infrastructure plan which includes cost estimates and financing associated
with sewage, water, transportation and public seNice facilities should also be
undertaken.
We (Le. MMAH and PIR) would be pleased to discuss any of these matters in more
detail. Please feel free to have your office call me directly at 416-585-6583 to make
arrangements. .
Yours truly,
~~
ner, MCIP. RPP
Louis Bitonti
Planner
c.c. Hannah Evans, PIR
5
133
** ToTAL PAGE.06 **